SUBJECT: DEPARTMENT OF PLANNING Date of Hearing: AND ZONING STAFF REPORT BOARD OF SUPERVISORS PUBLIC HEARING SIDP-2015-0003, Cascades Overlook Sign Plan # 11 ELECTION DISTRICT: Sterling CRITICAL ACTION DATE: STAFF CONTACTS: APPLICANT: Kelly Duty, Project Manager, Dept. of Planning & Zoning Ricky Barker, AICP, Director, Dept. of Planning & Zoning Cascades Overlook Development Partners, LLC PURPOSE: The purpose of this item is to consider a Sign Development Plan for the Cascades Overlook mixed-use town center. The Applicant proposes to modify the sign regulations of the Revised 1993 Zoning Ordinance to modify the maximum permitted number, area of any one sign, total aggregate sign area, height of signs as well as permit the use of exposed illuminated neon tube lettering in Cascades Overlook. RECOMMENDATIONS: The Planning Commission voted 8-1 (Scheel Opposed) at their June 16, 2015 Public Hearing to forward the application to the Board with a recommendation of approval subject to Conditions of Approval. Staff recommends approval of the application with Conditions, based on consistency with Revised General Plan policies. Approval is subject to conditions and requires compliance with the submitted sign plan. There are no outstanding issues and the application is ready for Board of Supervisor s action. CONTENTS OF THIS STAFF REPORT Section Page Section Page Section Page Motions 2 Outstanding Issues 8 Conditions 13 Application Information 3 Policy Analysis 8 Attachments 15 PC Review 4 Site Identification 8 Findings 4 Compatibility 11 Context 4 Environmental/Heritage 13 Proposal 6 Zoning Analysis 13
Page 2 SUGGESTED MOTIONS: 1. I move that the Board of Supervisors forward SIDP-2015-0003, Cascades Overlook Sign Plan, to the September 2, 2015, Board of Supervisors Business Meeting for action. OR 2a. I move that the Board of Supervisors suspend the rules. AND 2b. I move that the Board of Supervisors approve SIDP-2015-0003, Cascades Overlook Sign Plan, subject to the Conditions of Approval dated June 18, 2015 and based on the Findings for Approval included in the, Board of Supervisors Public Hearing staff report. OR 3. I move an alternate motion.
I. APPLICATION INFORMATION APPLICANT Cascades Overlook Development Partners, LLC. Don Wooden, President 4080 Lafayette Dr. Suite 265 Chantilly, VA. 20151 571-375-1750 dwooden@meladon.net REQUEST Item #11, SIDP-2015-0003, Cascades Overlook Sign Plan Page 3 REPRESENTATIVE Cooley, LLP Molly Novotny, Senior Land Use Planner 1951 Freedom Drive Reston, VA. 20190 703-456-8105 mnovotny@cooley.com Cascades Overlook Development Partners, LLC, of Chantilly, Virginia, has submitted an application for a Sign Development Plan to request alternative sign regulations for permitted signs in order to: 1) Modify the maximum permitted number, area of any one sign, total aggregate sign area, and height of signs; and 2) Permit the use of exposed neon illumination. The subject property is being developed pursuant to ZMAP-2012-0019, Cascades Overlook, in the PD-TC (Planned Development-Town Center) zoning district under the Revised 1993 Zoning Ordinance. The subject property is also located within the Route 28 Taxing District. This application is subject to the Revised 1993 Zoning Ordinance, and pursuant to Section 5-1202(E) alternative sign regulations for permitted signs may be requested with the submission of a Sign Development Plan. The subject property is located on the east side of Bartholomew Fair Drive (Route 1792), south of Benedict Drive (Route 1010), and west of Potomac View Road (Route 637), in the Sterling Election District. The area is governed by the policies of the Revised General Plan (Suburban Policy Area (Sterling Community) and Route 28 Corridor Plan) which designate this area for Route 28 Business uses at a recommended Floor Area Ratio (FAR) between 0.4 and 1.0. PARCELS Tax Map: /81//38/////1/ and /81//38/////2/ PIN: 020-38-8593-001 and 020-38-8593-002 ACCEPTANCE DATE 03/31/2015 ZONING ORDINANCE Revised 1993 POLICY AREA Suburban ACREAGE 13.22 LOCATION 21361, 21365, 21385, 21399, 21426, 21430, 21434, 21435, 21438, 21453, and 21475 Epicerie Plaza, Sterling, Virginia EXISTING ZONING PD-TC PLANNED LAND USE Sterling Community & Route 28 Corridor Plan
Page 4 II. PLANNING COMMISSION REVIEW AND RECOMMENDATION At the Planning Commission June 16, 2015 Public Hearing, there were no members of the public that spoke on the proposed application. The Planning Commission s primary topic of discussion revolved around the size of the entrance signs relative to the scope of the development as well as adjacent commercial developments. District Planning Commissioner Syska made a motion to forward the application to Planning Commission Work Session. The motion failed with a 3-6 vote (Blackburn, Douglas, Dunn, Klancher, Ryan, Salmon Opposed). Alternatively the Planning Commission voted 8-1 (Scheel Opposed) to forward the application to the Board of Supervisors with a recommendation of approval, subject to the Conditions of Approval dated May 27, 2015, and based on the Findings for Approval below. The Applicant agrees to the Conditions of Approval. The County Attorney s Office has reviewed and finalized to form the Conditions of Approval. III. FINDINGS OF APPROVAL 1. The Cascades Overlook Sign Development Plan generally conforms to the design guidelines contained in the Revised General Plan and the Countywide Retail Plan. 2. The Sign Development Plan establishes standards for the location, size, height, number, color and material of signage for Cascades Overlook Development. 3. Subject to the approval of the Sign Development Plan, the application conforms to the requirements of the Revised 1993 Zoning Ordinance. IV. CONTEXT Location/Site Access The Cascades Overlook Development is located east of Leesburg and south of Route 7. The property is situated between Bartholomew Drive and Potomac View Road on the south side of Benedict Drive. The site, currently under development, is accessed via a construction entrance off Potomac View Road. Existing Conditions
Page 5 Existing Conditions Currently site work is underway on the 13.2 acre subject property. Applicant anticipates the first tenants to open in the autumn of 2015. The property forms the eastern edge of the Route 28 Taxing District. Bartholomew Fair Drive and Benedict Drive are undivided 4-lane local secondary roads. The intersection of these roadways is signalized. Potomac View Road, south of Route 7 and south of the subject property, converts from a 4-lane undivided highway to a two-lane road. The Potomac View / Benedict Drive intersection is currently unsignalized. Surrounding Properties The site is bordered to the south and west by Gatherings at Cascades Overlook, a 440 unit planned Active Adult / Age Restricted community (PD- AAAR). The Potomac Run Shopping Center is located across Bartholomew Fair Drive west of the site (PD-CC-SC). An Exxon station and complex of medical office buildings are located north of the property across Benedict Drive (PD-OP). The Connemara Woods residential community is located east of the site at the intersection of Potomac View Drive and Benedict Drive / Connemara Drive (R-4). Two single-family homes border the property to the east across Potomac View Drive (R-1). Claude Moore Park and the Loudoun Campus of Northern Virginia Community College are located south and north of the site, respectively. Vicinity Map
Page 6 Directions - Directions: From Leesburg, take Route 7 east to Potomac View Road. Turn right onto southbound Potomac View Road and cross Benedict Drive / Connemara Drive. The subject property is the west side of Potomac View Road immediately south of the intersection with Benedict Drive / Connemara Drive. Background - The subject property was approved for rezoning (ZMAP-2012-0019) on April 16, 2014, which was originally split zoned from R-1 (11.81 acres) under the Revised 1993 Zoning Ordinance and PD-OP (1.39 Acres) under the 1972 Zoning Ordinance to a PD-TC (Planned Development Town Center) designation to permit a mixture of residential and non-residential uses. The subject property is approved for up to 150 residential dwelling units, 8,000 square feet of office uses, 135,000 square feet of retail uses, and 8,600 square feet of civic uses. Cascades Overlook CDP When this staff report was written there were no comments on LOLA. V. PROPOSAL Cascades Overlook Development Partners LLC is a proposing a Sign Development Plan to clearly identify and facilitate safe and effective navigation through the site. In order to realize the vision for Cascades Overlook Development the Applicant has requested to allow an increase in the number and sizes of permitted signs to coordinate and create a unique sign plan. Applicants are permitted to request alternative sign regulations via an
Page 7 SIDP application subject to specific criteria. The Applicant states the Zoning Ordinance does not permit the scale, location and number of signs they believe are needed for the development. Based on this assumption the Applicant is requesting alternate sign regulations, in their opinion, to reduce visual clutter and to allow visitors to orient themselves while utilizing the amenities on the subject property. The applicant is proposing the following signs for the property: Three (3) project entrance signs: one (1) wall-mounted sign, one (1) building mounted signs, and one (1) freestanding monument sign; Eight (8) site directional signs; Three (3) pad site directional signs; Four (4) pedestrian map directory signs; Four (4) parking garage signs; One (1) commemorative plaque; Multiple building-mounted tenant (retail /office) signs; Multiple window display tenant signs; and Expose neon tube illuminated channel lettering for a freestanding restaurant tenant. Sign Location Plan
Page 8 The Applicant has provided a detailed Sign Development Plan (SIDP) that establishes parameters for the type, number, size, height, location, and illumination of the proposed signs (see SIDP, Attachment 4) as well as the overall design. An overall site map depicts the location of the various sign types (see SIDP Plat Attachment 4). A sign matrix within the SIDP provides a comparison of the existing sign regulations contained in the Revised 1993 Zoning Ordinance versus the requested signs (see Sign Matrix, Attachment 5). The sign matrix delineates what signage is permitted by-right under the Revised 1993 Zoning Ordinance by sign category and presents the Applicant s proposal for modifications such as increasing the square footage, number and/or maximum height of each sign category. VI. OUTSTANDING ISSUES There are no outstanding Staff issues. The primary topic discussed during the referral process was consistency and scale of the proposed signage in relation to the orientation of the site and buildings and with the general location, character and compatibility of the overall development. The modifications requested (see Sign Matrix, Attachment 5) address the unique site characteristics of Cascades Overlook development and are consistent with the overall scale of the development. The Applicant is in agreement with the recommended Conditions and the County Attorney s Office has reviewed them. VII. POLICY ANALYSIS Sign Development Plan (SIDP) Criteria for Approval - Zoning Ordinance Section 5-1202 (E)(1) of the Revised 1993 Zoning Ordinance states that when considering a Sign Development Plan, the Planning Commission shall give reasonable consideration to six factors. These criteria for approval are organized below by category, followed by Staff analysis. A. SITE IDENTIFICATION ZO 5-1202(E)(1)(a) Assist motorists, bicyclists and/or pedestrians in finding a location without difficulty or confusion. (b) Clearly identify places of business or communities, while avoiding unnecessary redundancy. Analysis There are no outstanding site identification issues. The site is governed under the policies outlined in the Revised General Plan. The site is located within the Sterling Community of the Suburban Policy Area and designated for Route 28 Business uses. Maximum Size Minimum Setback Permitted (Site >10 and 40 acres) Table 1. Entrance Signs. P1 Wall P1.2 Building Mounted; Mounted; Bartholomew Fair Potomac View Rd/ Dr./ Benedict Dr. Benedict Dr. P2 Freestanding; Benedict Dr. 60 sf 114sf 114 sf 49 sf 10 10 10 10
Page 9 Maximum Height Maximum Number of Signs Illumination 10 10 8 13 6 12 1/ vehicular entrance Yes 1/ project 1/ project 1/ project LED - Internally illuminated / back-lit LED - Internally illuminated / back-lit LED - Internally illuminated / back-lit Largely, the proposed Sign Development Plan (SIDP) creates an encompassing hierarchy and coordination that will allow those visiting the Subject Property to partake of the available services. The proposed SIDP includes three (3) project identification signs for the town-center, which include one (1) wall-mounted sign at the intersection of Bartholomew Fair Drive/ Benedict Drive, one (1) building mounted sign on the corner of Benedict Drive/ Potomac View Road, and one (1) freestanding monument sign at the main entrance to the site off of Benedict Drive (see Table 1 above). The intent of the Route 28 Business policies is to provide low to mid-density Office and Flex uses with supportive Commercial Retail and Services. In the Route 28 Business areas, the buildings should be the predominate feature and the signage is intended to complement the building. Signage should exhibit uniformity in size, preserve the character of the development, and build upon an established sense of place. The overall appearance and design concept of the signage for the development should relate to the dominant mixeduse office center image of the surrounding Route 28 Business Centers in the area. (See proposed entrance sign illustrations below.) Proposed Wall Mounted Entrance Monument (Intersection of Bartholomew Fair Drive/ Benedict Drive)
Page 10 Proposed Building Mounted Entrance Sign (Facing Benedict Drive at the Intersection of Potomac View Road/ Benedict Drive) Proposed Freestanding Entrance Monument (Main Entrance on Benedict Drive)
Page 11 Staff finds that the proposed entrance signage is consistent and compatible in design due to the use of standard colors, logo, high-quality materials, and complimentary architectural style. It is well-designed and appropriately scaled, and will help identify the development and the tenants available when accessing or passing the site. B. COMPATIBILITY 5-1202(E)(1)(c) Demonstrate compatibility with and be subordinate to the structures and land uses referenced by the sign. (f) Provide a sufficient number of graphic messages or displays without creating competing demands for visual attention. Analysis There are no outstanding compatibility issues. The Countywide Retail Plan provides guidance regarding the development of retail signs and states that signage should be developed as an integral part of the overall center design and exhibit a unified graphic design scheme. Mutually important are the location, quality, and clarity of signs because they delineate the overall perception of a development, individual business or office center and its surrounding community. Individual businesses, tenants, and the image of the development are enhanced when signage is well presented and coordinated. The proposed directional (Table 2 below) and directory signage for Cascades Overlook provides an acuity that is integrated and consistent in design as the colors, building materials, and complimentary architecture of the buildings are standard across the site. This standardization of the signage will allow visitors and others utilizing the site to navigate with ease. The applicant proposes a Commemorative Plaque to call attention to the first black church in Loudoun County, which shall be unique to the subject property but typical for signage type. In addition to these, a variety of building-mounted signs have been proposed for both freestanding and inline buildings as well as parking garage where the size and type of the signs will vary based on the frontage of the tenant (e.g. sign square footage per linear foot of frontage). Table 2. Directional Signs. Permitted (Site >10 and P3 On-site. T4 Tenant, On-site. 40 acres) Maximum Size 4 sf 9sf 6.25 sf Minimum Setback 5 5 5 Maximum Height 3 5 6 4 Illumination Yes Non-illuminate Non-illuminate
Page 12 Layout Examples
Page 13 C. ENVIRONMENTAL 5-1202(E)(1)(d) Address impacts to the night sky. (e) Incorporate energy efficient measures, where possible. Analysis There are no outstanding environmental issues. Staff finds that signs, if lit, will be either backlit or have white light with no upward directed lighting and notes that the proposed signage will incorporate energy efficient measures, where feasible. In addition to this the applicant is proposing one freestanding restaurant, in Building H on SIDP page 6, to have exposed neon letters. This meets or exceeds Revised General Plan policy on night-sky impacts. Condition of Approval 4 re-iterates the requirement that the illumination of signs within the development will not impact the night sky or adjacent properties and shall be consistent with County lighting standards and limits the exposed neon signage to one building. Proposed Building Example with Neon VIII. ZONING ANALYSIS Analysis There are no outstanding zoning issues. The Applicant is requesting a Sign Development Plan for a planned mixed-use town center in a PD-TC (Planned Development Town Center) district. This application is subject to the Revised 1993 Zoning Ordinance and the proposal has been reviewed in accordance with the Sign Regulations contained in Section 5-1200 of the Zoning Ordinance. Minor changes to the SIDP were recommended and made in accordance with Staff comments. IX. SIDP-2015-0003, CONDITIONS OF APPROVAL June 18, 2015 1. Substantial Conformance - The sign and sign standards (size, height, location, number, colors, material, etc.) for the signs placed on the Subject Property shall be in substantial conformance with pages 1 through 25 of the Sign Development Plan entitled Cascades Overlook Sign Development Plan, prepared by BCT Architects, dated May 27, 2015 (the Sign Plan ). Approval of this application for Tax Map Numbers /81//38/////1/ (PIN# 020-38-8593-001) and /81//38/////2/ (PIN# 020-38- 8593-002) (the Subject Property ) shall not relieve the applicant or the owners of the Subject Property, their successors, or parties developing the Subject Property, from the obligation to comply with and conform to any other Revised 1993 Loudoun County Zoning Ordinance (the Zoning Ordinance ), Codified Ordinance, or
Page 14 applicable regulatory requirement not modified hereby. This approval applies only to the modification of sign standards as modified in the Sign Plan and/or in these conditions for signs that are otherwise permitted and is not intended to approve the use or placement of any signs that are not specified in the Sign Plan and permitted under Section 5-1200 of the Zoning Ordinance. The modifications approved herein supersede the provisions of the Zoning Ordinance regarding such modified standards and shall apply to the signs identified in the Sign Plan. In the event of a conflict between the approved Sign Plan and the Zoning Ordinance, other than with respect to the specific modifications of standards approved in this application, the provisions of the Zoning Ordinance shall apply. 2. Sign and Landscaping Maintenance Individual signs and associated landscaping materials shall be maintained in good condition and good health in order to provide complete sign visibility and legibility, to sustain the life of the planted materials, and to prevent obstruction of sight distance. 3. Landscaping - Landscaping such as low-lying shrubbery and/or flowering plants as appropriate should be incorporated/planted around the base of each Wall Mounted Entrance Sign and Ground Mounted Entrance Sign permitted by this Sign Plan. The use of species native to the Piedmont Physiographic Province of the Chesapeake Bay Watershed, as described in "Native Plants for Wildlife Habitat and Conservation Landscaping," written by the U.S. Fish and Wildlife Service, shall be preferred. 4. Sign Lighting- Lighting used to illuminate signs identified within the Sign Plan shall be designed and installed to adhere to the following standards: a. Energy efficient lighting, such as LED (light emitting diodes) or equivalent, shall be utilized where feasible for all exterior sign lighting. b. No animated, moving, or flashing lights shall be permitted. c. Lighting for signs shall be directed toward the sign face and all of the lighting fixtures shall be shielded so as not to spill upward or reflect or cast light or glare onto adjacent properties or roads. d. Lighting for signs shall only be used only from dusk until dawn or during times of decreased daytime visibility due to weather. 5. Use Restriction Exposed Neon Illumination Within the area shown on page 6 of the Sign Plan as Bldg H (Future), the use of exposed neon tube lighting in conjunction with the retail building sign identified as Freestanding Restaurant (Single Tenant) Type 2 on page 21 of the Sign Plan shall be permitted. No other use of exposed neon illumination shall be permitted. 6.
Page 15 X. ATTACHMENTS PAGE NUMBER 1 Review Agency Comments 1a Comprehensive Planning, Planning & Zoning (04-29-15 & 06-01-15) A-1 1b Zoning Administration, Planning & Zoning (04-28-15 & 05-27-15) A-7 2 Applicant s Statement of Justification (05-27-15) A-13 3 Applicant s Response to Referral Comments (05-14-15) A-17 4 Sign Matrix (05-14-15) A-25 5 Sign Development Plan (05-27-15) A-32 *This Staff Report with attachments (file name BOSPH STAFF REPORT 07-08-15.PDF) can be viewed online on the Loudoun Online Land Applications System (LOLA) at www.loudoun.gov. Paper copies are also available in the Department of Planning.